The Progress of Public Works in the Philippine Islands Author(s): James W.

Beardsley Source: The Journal of Race Development, Vol. 1, No. 2 (Oct., 1910), pp. 169-186 Published by: Stable URL: http://www.jstor.org/stable/29737856 . Accessed: 04/10/2013 02:06
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THE PROGRESS OF PUBLICWORKS IN THE PHILIPPINE ISLANDS.

By James W. Beardsley, recently Director in thePhilippines.
An address delivered at Clark University the Far East. during the

of Public Works
Conference upon

When
to present

an invitation was received from Clark University

some notes on the progress of public works in

the Philippine Islands the task appeared easy to accomplish. The first difficulty encountered, however, was the fact that few general statements hold true throughout the Islands.
The and tions works numerous dialects and customs, the separation of the

people by natural barriers, the lack of inland communication,

the absence to unite and may as would tended form of government which of a previous account for these varia? the people, readily explain clearly seeming show contradictions. the nature The second accom?

difficulty was the selection and extent of detail of such public

of the work

plished, the conditions encountered and the progress made in promoting the prosperity of the Islands, and the welfare of
the people. I shall assume familiar with that those the members remarkable of this conference are

instructions

of President

to the military commander and to the first and McKinley second commissions, with the first work of the Philippine
Commission vinces and the transfer of military during control the years over the pro? 1902, to the civil government 1901 and

with

the creation of the legislative,

judicial and executive

and provincial of the various

of municipal with the enactment departments) as necessity arose laws and with the creation bureaus. government

The
works ruary

chronological development
follows. 6, 1901, The

of the bureau of public

act dated Feb? government provincial as one of the three members of the provided

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170 board

JAMES W.

BEARDSLEY

a supervisor who was required to be a civil for provincial and who was responsible public engineer, non-technical branches of pro? works and also for numerous provincial vincial administration.

In August,
Philippine

1902, the office of consulting engineer to the

was created, under which designa? for of In

Commission

tion the writer began his work in the Islands.

1903, the bureau a small technical provincial and no that public of district for public and

In January,

was of engineering created, providing clerical force, and the supervision works was placed under this bureau. engineer created, partly to reduce

the latter part of 1905, the office of supervisor was abolished,

pro?

vincial expenditures
funds neering bureau bureau was

and partly because

At

the provinces had

the same the engi? time the

but mainly works, of the government. problems was of engineering reorganized of public works, to director and the title of public

to centralize

changed

and designated the of consulting engineer works. about To-day

one hundred engineers including a few of the returning Fili?

pino students The Islands in five over of which The and one dominate. are engaged are divided in the bureau. into some thirty-seven or semi-savage provinces, tribes pre?

the non-Christian

remaining thirty-two acres one-half million

provinces, averaging are into divided each,

twelve engineering districts, the district engineer of each of which is responsible for all of the technical work executed
under assisted men, and the direction by such laborers of the bureau engineers, as the nature and of public works. He is assistant inspectors, clerks, extent of his work fore? may

require.

The principal responsibilities

bureau and of public works specifications lic works, to the day

imposed by law upon the

to survey relate estimates designs, for insular, provincial and municipal pub? of contracts and the supervision awarding and contracts include and to the are execution of public works re? These impracticable. wrorks of of the the bureau city of

of works by

thereunder, labor when do not

sponsibilities of Manila, navigation,

the lighthouses nor at present

the municipal port works

the supervision

of railways.

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PROGRESS OF PUBLIC WORKS

IN PHILIPPINES

171

The principal sub-divisions of the bureau of public works are the road division, which is charged with the construc? tion of roads and bridges throughout the provinces; the build?
ing division engineers artesian ,which and is charged with repairs, and new construc?

tion; the provincial

division, which
the bridge of property,

includes the district

division, of which pre? and of

their works; of drafting,

pares all designs; the irrigation division and the divisions of

wells, records

accounts. From small appropriations in 1903, this bureau became responsible during the fiscal year 1908 for the expendi?
ture of appropriations revenues of the total of the provinces out policies wells, and aggregating nearly insular government. were relative centralized. one-third It's The of the technical was

forces had been increased some thirty fold, and the technical
works carrying artesian bureau to roads, bridges, as as aggressively prior to American buildings, conditions

irrigation works

permitted. The status

of public

occupation

was deplorable. While the Spanish engineers accomplished some excellent work in the Islands they have been credited
with a few of Manila, results which exist only on paper. churches of masonry of well exists interests of as The most

notable public works of Spanish days are the walls of the

city the massive some some but the masonry throughout or steel and road?

the Islands, the irrigation systems on a few of the friar land

estates The ways near Manila, remains can be of bridges

the fortifications of a few of the principal cities.

sections no evidence constructed found, of any continuous of the islands. the highways in

serving highways In a consular report of the Philippine

agricultural on the condition served

1898 the American Consul stated that the roads and streets
Islands only an illustration of the sad demoralizing effect of neglect and indiffer" ence. is not a single driveway There the city limits o* beyond or nor a Iloilo will allow the pas" which roadway Manila, Cebu, vehicle with any degree of comfort to its sage of a four-wheeled . . . No attempt or of safety to its integrity is ever passengers over these wretched to haul the produce of the provinces made . . . The roads and all that reaches the cities comes by water country is traversed by numerous foot paths over which the natives

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172

JAMES W.

BEARDSLEY of

The major portion carry produce on their shoulders or heads. an undeveloped is practically wilderness. the archipelago

A brief account follows of the geography, meteorology,

people, and material which are important in a consideration

of the progress of public works. treaty boundaries, the location of the Is? Disregarding lands is between the meridians 117 degrees and 127 degrees east longitude and the parallel 5 degrees and 21 degrees north latitude. Officially the total number of Islands is 3141 and the total land area is 115,026 square miles. The two largest islands Luzon and Mindanao, contain 40,969
36,292 with gether miles. For and square Samar, all practical is fourteen miles, respectively. Negros, these as These Panay, eleven islands, Mindoro, islands con? to? Palawan, purposes

Leyte, Cebu, Masbate, stitute

of the

and Bohol Archipelago.

times New combined

contain 106,823 square The

large area

the Philippine
islands

entire land area

as Massachusetts. of Massachusetts,

It is almost Connecticut,

as large as the New Jersey,

York,

and

Pennsylvania.

The density of the population of the entire Islands is about two and six-tenths that of the United States, but only one
fifth that of Massachusetts. misleading, of Cebu comprises populated. the rural are two There as This the a somewhat portion sparsely is, however, comparison axial mountainous central area cities, exceeds which and actual that of is

considerable large greatly occurring classed

are no

of density Massachusetts. There

population the dry,

seasons,

during as a third

the first

half of the year, and the wet, during the latter half.
cooler winter The average months rainfall and this are sometimes in Manila amount. is about seventy-five it may region are

The
inches

season. be two

coincident with Typhoons over an area of from the rainy season. These storms extend 100 to 300 miles in width; center moves the cyclonic usually at a rate of 10 to 15 miles the wind but per hoar, velocity within of the center may be thirty, forty or even 100 miles and destructive high The elevation crops. both to structures clouds and over of the rainladen to growing the moun

per annum, or three times

in the mountainous

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PROGRESS OF PUBLIC WORKS tain occasions intense

IN PHILIPPINES over

173

ranges

precipitation

a large area.

The rainfall under these conditions frequently may amount to one or two feet within two or three days, and it sometimes
averages an inch an hour for an entire day. The result is a

dangerous flood throughout the tributary and trunk system

areas. are the cause of serious of drainage They to the engineers in construction engaged work, in other oriental any country. unequaled The of existence of the severe wet each requires a six months difficulties to a degree

for a period and dry seasons which type of construction

shall withstand successfully both extremes. This applies with special force to road work, the greater portion of which is located on costal and alluvial plains where the soil under
continued saturation becomes almost incapable contractors on account of support? provide of the load. ing any It is important that for inland transportation ravages creased of surra and the

and engineers of material

pox and tions in the past, These expected. from cannot by in the works

which de? have seriously rinderpest small? of of draft animals. supply Epidemics cholera been destructive to labor organiza? have and their recurrence have as more been must so diseases be occasionally com successfully those

batted by the Board of Health

be regarded the epidemics of this low-lands, is executed where has

that future difficulties there?

serious The presented of malaria prevalance of construction portion continue to be a source and than

country. the greater

been

and will

of expense and delay The labor condition

to all public works construction. in the Islands is unsatisfactory

a full discussion
scope nished of this

of the problem

is impossible within
all unskilled labor whose

the
wel?

paper. Practically of illiterate Malays, by that great mass fare is the special of our government. problem but temperate, exceptionally indolent, unreliable, gamblers. fatten on

is fur?

are They and invet? demagogues, for personal good citizen? are and who and their

They are easily lead by vicious who false patriotism and are greedy but they are as easily influenced towards power, in whom those have confidence ship by they erate familiar with their customs. They love music

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174

JAMES W.

BEARDSLEY

homes, and are childlike in their anger and affection.

provement tions, in these and There customs, possible middle is no predominating to create small freeholders, such results. requires and language, traits a modification is not of within class. to

Im?
tradi? one Con?

generation. ditions tending and to establish literacy, tangible, whose The favorable consent

increase

a class, are now working with of The influence pernicious

the "cacique,"

that tyrant of hamlet

purchases cannot

and village without

nor labor hired,

be made

is being slowly but surely destroyed.

Tagalogs, Visayans, and 8.2 per cent, 21.2,11.7, Ilocanos, respectively, form 46.8 and Bicols, of the total civilized

population; unfortunately all of these tribes differ in speech, each having its local dialect. Until recently they were
tools ordinary is agriculture, Their principal occupation a pointed The plow, tool is the "bolo". entirely unacquainted and the construction with the more type of permanent used by Americans. and the universal sometimes stick,

capped with iron, and guided by a single handle, moves the dirt to a depth of three or four inches but does not turn a
furrow. The bolo, plow, and mattock, are the principal

tools of the farmer. Rice is the staple food and it is culti? vated throughout the Islands, but to a limited degree where
sugar, tobacco, hemp, have been developed. cocoanuts The and other of rice valuable cultivation observer crops and

harvest and hemp stripping will not question the capability of the Filipino to labor. He is especially apt where deft?
ness of hand is quick The motormen the as in drafting is required, to learn to operate machines. of the Manila Street and typewriting, and

the engine drivers chauffeurs, are Filipinos. coastwise vessels, action lines requiring independent Their based The lesson work upon along these a knowledge lines

of the most Railway, of the and of the railway in

are not efficient They and personal responsibility

engineer of supervision

competent supervision requires and local dialect. of their character or will not learn this or contractor who cannot cannot succeed in handling Filipino and their families sparsely inhabited

the laborers In order to retain laborers. in regions of time for a reasonable period

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PROGRESS OF PUBLIC WORKS and where forces are

IN PHILIPPINES it is necessary

175 to con?

large

required,

struct shelters, a hospital, a commissary provided with food, clothing and cigarettes, and also to furnish recreation and
perhaps establish of several The a church hundred and school.

Height
average

and weight are suggestive of physical power.

measurements labor of matured

The
men

gives a height of five feet 3.5 inches and a weight

pounds. American of average efficiency is about labor one-third,

of 116

and deftness average where quickness are necessary. and weight one-sixth where strength physical an increased that made indicate the army by Experiments

as compared with a from high ranging are required to about

efficiency can be attained by substituting nitrogenous foods for the prevailing characteristic diet of rice and dried fish.
As compared with other oriental countries the wages of the

Filipino Filipino

laborer is high. Under American supervision the " is beginning to understand the meaning of dignity
under exists compulsory for providing of shelter labor food systems, for the

a term unknown of labor/' no necessity and where months are of winter, so slight.

and where

the needs

and clothing

The Islands throughout the densely populated areas are lacking in building stone. Very few good quarries have been found and developed. Coral rock is plentiful along the coast,
from which the natives manufacture of an produce inferior brick an excellent lime. High The grade is common.

timber is available only in limited quantities and it is expensi

cheap rary works ant. Sand reasonable localities extent. are sive; of tempo? grades are used only in the construction on account of the destructive action of the white are fairly well distributed and gravel in cost. Coal is expensive. It is found in many to a limited and it is now mined but increasing and river for the manufacture located of Portland cement

Materials

so conveniently that its manufacture a few years, within justified from price But few outside

in certain of the Islands parts be anticipated by private parties may the government in lieu of which would be in its production. at a high It is now purchased markets. contractors are located in the Islands. efficient

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176

JAMES W.

BEARDSLEY

Contracts

have been entered into with American, Filipino, Chinese, and Japanese firms. It has been the policy to en? courage contractors to enter the field and to foster competi?
tion. The supervision All construction are not required work with inexperienced been contractors

has placed heavy responsibilities upon the bureau of public

works. tractors' has rush work. Con? plants the the labor required material available Salaries in the Manila markets.

The
equip secure

supply of small tools was

forces. number

frequently
have been

insufficient
too small men. technical

to
to

of experienced forces,

Valuable
the desired

time has been required to impart from the States

and supervising and exceptionally

heavy responsibilities have been placed upon the engineer in the field. Efficient foremen were lacking; the pick was prone to break the foot of the man who drove it, and the
wheelbarrow was awkward to carry on the head. It has been new a for to and to be the learn necessary engineer language an instructor in the use of new tools and methods. The co?

operation
overcome lacking the

of all interested officials has been necessary

adverse conditions, are almost difficulties and where cooperation insurmountable. that

to
is

The principal public works accomplished during the past

or now in progress under the direction of the bureau decade, are the construction of public works, of roads and bridges and the development of an active, road good aggressive,

policy;

the construction

of public

buildings

for official

and hospitals for the barracks, quarters, schools, prisons, the and the central, provincial governments; municipal the creation of an irrigation and the general policy improve? ment of public works the throughout province. with of some of these works description together follows, a description of various other the important works, of which was not under the bureau direction of public works. A brief

The visitor familiar with oldManila will be impressed first

with the harbor along Manila practically engineers. river Pasig largest improvements lines proposed Bay is some which several have been completed years ago by Spanish 25 miles in diameter. The is one of its city of Manila is deltaic and the great

flowing tributaries.

the through The formation

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PROGRESS

OF PUBLIC WORKS

IN PHILIPPINES

177

depth of soft silt complicates the construction of foundations.

The vessels an area of some 350 acres, in which encloses enter and have protection 25 feet draft may a real harbor of refuge. It It constitutes against typhoons. as needed. has three steel piers and others will be constructed break-water of about

The construction of this harbor including the reclamation of some 200 acres of bay front will be available for government
and in a city where warehouses private sites were owned or occupied by foreign nearly firms. all desirable

The central location of Manila as a distributary point to Japan, China, the Strait Settlements, East India, and Aus? tralia, affords great possibilities for future development. The importance of Hong-Kong iswell known. Is it a dream to say that with the improvements completed and proposed in Manila harbor she will in time, under liberal shipping
regulations, equal and ultimately outstrip her rival?

The next important ports in the Islands are those of Cebu and Iloilo, whose harbors have been improved whereby these
centers going for hemp and sugar can load at their wharves ocean vessels. The cost of these harbor works aggregates

about $4,000,000. An ice plant costing about $1,000,000, and of a capacity sufficient tomeet the needs of the city, was built by the navy
during Two narrow other, the early bridges toll bridge, the Bridge days of the war. crossed the Pasig a river, one of which was a The company. operated by private of Spain, has been widened; two new steel

bridges have been built, and the need of the third is claiming
attention.

The Manila Street Railway,

of track, has This days. replaced road was the

consisting of about forty miles

horse built is now trams of earlier an American

and opened company pinos under American lesson Filipino $5,000,000. building heretofore sites of what laborers. This and

by operated by Fili? and is a striking supervision object can efficient with supervision accomplish The cost of this system was approximately in 1905. It electric is reducing road has excessive up desirable opened rentals which have

impossible financed and

prevailed.

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178 The were of Manila

JAMES W. was

BEARDSLEY in a very condition.

city

unsanitary in

The municipal

council started
for extensive construction on

investigation,
improvements of a new

and projects
the water

prepared and for the supply The intake system.

the Mariquina new water works

sewer separate a was below River

thickly populated
ficient in quality.

area.
The

The water was polluted

system

and de?
was com?

1908. The pleted sufficiently to be opened in November, new water supply is also derived from the Mariquina River, the dam being located above populated areas about 20 miles
from Manila tain. been Some no The in a picturesque gorge at the foot of the moun? 140 square miles, has watershed area, comprising as a no set aside reservation settlement. and contains stone drains The The for surface new cost These water existed in Manila but is now

sewers.

completed. rent revenues.

separate system of house connection improvements

practically is covered by cur? a guaranteed paid by

bond issue of $4,000,000, placed Manila in a sanitary con? dition unsurpassed by any other city in the Orient. Utilitarians demand the removal of the city walls, the filling of the moat and the utilization of this area for various building purposes. Fortunately their arguments failed, the
walls and of much monument, unique reasons and The moat has been filled for sanitary interest. into parks and converted its area and the glacis are being some famous Luneta and with the This area, play grounds. the present 30 acres of reclaimed with together ground, remain botanical gardens, furnishes a valuable park system been as through as a historical

the heart of that portion of the city south of the Pasig.

ilar extensive and will
secured.

Sim?

on the north parks be constructed doubtless hotel

side have as soon

discussed, funds can be

Suitable private

parties

traveling public eta is Camp Wallace, groups of government will

accommodations have been but lacking, are providing to the this need so important Near the Lun? resident. and the temporary and its area will The contain the future of Manila practically

beautifying buildings. to complete. It is advancing require years lines laid out by Mr. Burnham. along the stately

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PROGRESS OF PUBLIC WORKS

IN PHILIPPINES

179

Relative
ing statement

to the construction of school buildings, the follow?

is taken from the message of the Governor

General to the Philippine

Islands for the year 1907:

of the people insular funds and contributions From twenty trade and two intermediate school four high schools, twenty The insu? have been constructed. buildings, all of strong materials, in thirteen and intermediate lar schools are housed buildings in forty-nine schools Three hundred and secondary buildings. two thousand four hundred and forty buildings of strong material, of mixed material, and four hundred and ninety and ninety-five to the municipal furnished accommodations three of light material all of these buildings have been constructed since schools. Nearly American occupation.

During the fiscal year 1908, the building division completed 1223 projects at a total cost of $533,674. Eight trade, inter?
mediate a market, an official or high schools, on a one of the Friar hacienda building Baguio, were and two constabulary buildings completed, residence in land estates, and seven

cost of $163, at an aggregate extensively buildings repaired seven trade and Five provincial 385. buildings, high schools, and three buildings two constabulary for various barracks, a were con? of cost under $367,200.00 purposes, aggregating

tract and 61 per cent completed.

provincial and barracks, by day received under gate labor from one building, four school and the two two

Eleven buildings, including

three under The constabulary construction aggregate of which the Of cost were

hospitals, were buildings completed.

thirds

of these eleven buildings was $151,700.

advertisement appropriation and one consulting architect, for twenty-three for which an agricultural was many

Plans had been

aggre? the seven? most

buildings,

$653,000. school building.

teen school buildings included in the number five were trade

schools The

important of this group of buildings was the General Hospital

inManila, ation was a medical school the appropri? including now under are con? These $515,000. buildings . near are located the struction laboratories government They some and the weather The bureau. later was established for which and has rendered of the interests

the Jesuit Fathers, ago under fifty years of enormous to the maritime value service Islands. This group of buildings will

probably

be completed

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180

JAMES W.

BEARDSLEY

within a fewmonths and will form a scientific center superior to any now existing in the orient. All of the new construction
is of strong Reinforced does not material concrete times either is used meet fireproof or of slow combustion. extensively. the needs of agriculture. Rice,

The rainfall of the Islands is ample, but its distribution

at all

which is the principal food staple, requires double the amount of water of other crops. From time immemorial the Filipinos have leveled the land and conserved the rainfall by means
of small embankments. the mountain the last The sides century semi-civilized in a remarkable constructed on terraced friars Igorote manner. some has The

during

of their

estates irrigation systems of considerable extent. The lack of water on non-irrigated land at critical periods of culti?
vation years has out resulted of five. in a failure These or a short have conditions two crop about been understood,

but the small revenues and the demand for funds along lines of more immediate importance have limited expenditures to
the restoration been and maintainance of the few existing systems

on the Friar lands, which, to avoid agrarian difficulties, had

In 1907 the first appro? by the government. purchased were for the con? for secured, irrigation general priations in the of maintainance and struction systems irrigation

provinces. The law requires that this appropriation shall be reimbursable by owners of the lands benefited. In 1908 two additional appropriations weregranted. These
conditions and made police the organization surveys. irrigation Proposed consideration. under work has been have laws have Much been drafted effective and are now investi? are aggressive Numerous River educational to outline of commerce for the secretary it possible an irrigation to authorize and policy and force for investigation of the necessary

gations collected. engineers projects practically 180,000

being latter part of 1908 a corps of about twenty Eleven for this work. had been secured important In the detailed selected, These eleven completed. been of irrigable land. surveys authorized and projects cost The about comprise of construction

in progress. been made.

preliminary data hydraulic

had

acres

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PROGRESS

OF PUBLIC WORKS

IN PHILIPPINES

181

will approach two million dollars. The successful inaugur? ation of this irrigation work with annual reimbursable
appropriations operations will furnish provide, direct when reimbursements means for the become

normal, nearly one million dollars, and it should through its

practical improve?

ment

of agricultural methods and the selection of the most It will make possible the production profitable products.
annually fair yield of two all or three the areas crops in some over concerned, localities, and tend insure towards a a

general development throughout the Islands of agriculture upon which the prosperity of the people depends. A few
to import rice years ago it was necessary twelve million dollars. This useless drain but rather, with a reasonable improvement to the amount should of not occur, of agriculture,

with the restoration of draft animals and especially with the development of the thrift and industry of the people, the Islands should become exporters of rice and other food
products.

A work of large importance to the health of the people is that of securing potable water. Outside ofManila the main source of supply is the subsoil water which is reached by
means malaria of and unprotected large shallow the most are serious diseases and wells also wells. intestinal, a their Excepting and these

shallow polluted surface wells form amost efficient method of

retaining Artesian sible, them spreading throughout and also driven wells, where been provided community. use is pos? appro?

have

for by a reimbursable

priation.

In 1908 a further appropriation of $75,000.00 was made.

These the ceived small and appropriations local governments. in August, jet rigs have bacteriological are augmented from by contributions The first deep-well outfit was re? the second in and 1904, September, 1907,

the third inMay,

1908. Three deepwell outfits and several

been tests in operation are made the past year. the well before Chemical is turned

over to the community. Up to June 30, 1908, 28 wells In averaging nearly 300 feet in depth had been drilled.
some cent communities since pure water the death became rate has been reduced 50 per available.

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182

JAMES W.

BEARDSLEY

The Manila Railway Company, an English company, had constructed and was operating 120 miles of railway at the
time of American road have has been occupation. been authorized, Provisions have been made of which be no com?

for a bond issue to the amount of $30,000.

of new interest guaranteed. These

Some 750 miles

on 300 miles

lines must

pleted in 1913. Probably 200 miles of these new railroads have already been opened to the public. One of these lines leads from Dagupan, the terminus of the old railroad, to the foothills of the Benguet mountains, from which point the
Benguet follows highway the Bued cliffs leads to the Baguio through steep canyon plateaus, and whose forest eleva?

tion is about 5,000 feet. The highway,

precipitious tures of tropical tree ferns and in an almost and a naval river, and

20 miles

in length,
and along

vegetation pine-clad

slopes, presenting varying pic? and rugged mountains up to the are located hills of Baguio. Here an extensive military camp

temperate

climate

with its commodious hospital, a w^ell equipped civil hospital

hospital ment several business officials, residences. The general plans healthful beautiful, region were and resort the work accomplished while the construction reservation, is proposed. Here are the summer homes houses for of another of govern?

and many private the development of this also made Mr. by Burnham, to year is in accordance to the

from year and and

with his general ideas. The results in time will be a health

of exceptional beauty the governmental directing Islands. The roads development of advantage commercial affairs people of the

coastwise

transportation

and of rail?

the centers of trade, distributing commodi? connecting are at moderate ties and produce of rates, large value, but the construction of the highways of the island whereby the inter? ior areas can be served is of far greater to the importance It dated This is a notable September fund was

of an agricultural development country. fact that the first act of the commission 12, 1900, expended authorities and when appropriated $1,000,000 almost under the direction entirely upon mainly their upkeep roads fell for roads.

of the military in the vicinity of army posts, on the local government the

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PROGRESS OF PUBLIC WORKS

IN PHILIPPINES

183

advantages
ernment

of this expenditure disappeared.

various appropriations

The civil gov?

for roads aggre?

also made

gating some 500 miles in length, only a few of which were located through a developed region. While the local gov?
ernment accepted as public were for road and construction appropriation as for funds well their maintenance, responsibility new nor old roads lacking and neither spirit were sought sources The need of creating of in local governments inter? greater evident.

maintained. properly revenue and of arousing of their cost

est in these highways by placing upon them an equitable

portion became

The first aggressive enactment in the development of the present road policy was the Philippine Road Law of 1906. This law provided a tax of five days labor or a payment in
cash of its equitable commutation. It was was not to be effective to the extent that it and councilors of said province. an optional law in any province These elective

until it had been adopted by a majority

presidents
law.

vote of municipal of this

optional

officials uniformly declined to adopt the provisions

In 1907 The a double c?dula c?dula law was or per enacted, also

to the extent that it was to be adopted by the provincial

boards. one was and double one-half million only persons. on roads laws were capita The and tax applies to about in the tax increase bridges and aggre? about of the

to be

expended

gated about $750,000.

The half double for internal as much c?dula revenue amended the granting conditions

$375,000

to the road and bridge funds of the province and

for schools, provided law were adopted. The general appropriation

act for the fiscal year 1907-08 included an item of $250,000 "
for and the construction, the maintenance and to be allotted police," improvement, necessary, and, when of roads and bridges in the provinces, of the secretary in the discretion of commerce the

road and bridge fund from the usual a million more. about half aggregate provincial of the board hesitated on ac? two elective members The reasons to act. The people, count of political had however, a no to tax and c?dula raised been accustomed serious ob sources

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184

JAMES W.

BEARDSLEY

jection. A vigorous educational work regarding the import? ance of good highways was fruitful. Only four provincial boards failed to adopt the double c?dula law in 1907-08. The general appropriation bill for 1908-9 carried $500,000
for the for that same purposes, The and annual subject aggregate to the same of conditions, conditional

and all but one of the provinces accepted the double c?dula
year. these

funds and the ordinary road and bridge funds of the provinces gives a total of over $2,000,000 for the year 1908-9. The work accomplished during the previous year had made the
scheme popular to an exceptional These and events degree; the native officials

and the people began to perceive the integrity of the Ameri?

can officials. of commerce made it possible for the secretary a to authorize which road police policy roads policies of our foremost Main? States. the repair and reconstruction roads, and the construction of new roads are the essential items the allotment and the reduction and funds were of cost of

the good equals tenance of existing structures existing in a first importance of agricultural the real wealth

class manner for which lands

only in order of

available.

The value of this road policy to the material keting of goods can hardly be overestimated.
of the Islands true measure The bridges of the prosperity of the country, of of these

development
in the mar?

Agriculture
presents and the roads

is
a in? and

its condition

dustry of the inhabitants.

construction requires the and maintenance employment a hundred thousand

Filipinos annually, the large proportion of whom live in agricultural regions. They will become familiar with modern
tools and methods a market of work for American and to a considerable degree will

apply
making

this knowledge

to farm work,

thereby

incidentally

tools but materially increasing total cost of the conversion The of outputs. agricultural these roads and bridges to permanent some will be 25 types or 30 million and their annual maintenance will dollars, approach While $3,000,000. the advantages large outlays will be manifold. the country The American government these derived found figures represent to the prosperity a Malay people the of the

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PROGRESS OF PUBLIC WORKS

IN PHILIPPINES

185

great mass of whom did not know the value of thrift, of providing for themselves sustenance and shelter during the
ice-bound desire months of a northern for a rainy to provide and in whom winter, or old age or sickness day any had

been stifled through the danger of loss by robbery, by greed and graft, and who had never realized that a public office
was a public trust. These people are learning that taxation

furnishes a fund which is returning to them in increased facilities for transportation, in buildings for market, public offices, jails for the protection of society, and for schools for
all classes. a most In the construction of schools Contributions have spirit. in money, material and service a better funds to produce government for a school house when no government commendable they have shown from rich and been added to

poor

or larger or building^ funds were available.

It may be that this public spirit has been fostered by the idea that ability to read and write meant national independ?
ence. No matter what the cause, the aggregate result of

these lessons is developing individual independence and real patriotism. It will direct the people to a consideration
of and other public sanitation, justice questions. tells the overthrow of caciquism and grafting. The men who have secured results and advanced It fore?

the wel?

fare of the provinces merit a tribute. To the field engineer, the district engineer and his assistants much credit is due. His work has been educational in the highest sense. He has
contended with himself jungle, to contact any storm, strange and epidemics. conditions. He He has has shown

a high degree of courage, efficiency and integrity.

adapted example come in closer than been aside perhaps "rush" his of Americanism

He has
been an

the Islands. He has throughout with the large masses of the people other American official. His work has the year on and without the relief to furn? learn

throughout

ished by the frost of winter.

note-books the value based of new materials

He has been required to lay

former practice and a strange dialect.

Sir James irrigation countries

states in reference to the stupendous Strachey in India works that: "no similar works in other in the irrigation works of approach magnitude

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186

JAMES W.

BEARDSLEY

India, and no public works of nobler utility have been under? taken in the world." While inmagnitude our public works in the Philippines are exceeded by those in India, they stand
foremost remarkable in advancing That of the masses. the civilization of the American towards the government policy

Philippines was enunciated by our lamented McKinley, and I cannot it has been vigorously advanced by our President. these works that utililarian help believing practical by the
are powerful instruments engineer of a true sense of liberty among useful in the attainment in the de? the great masses

velopment of our dependencies and their people, the realization of the American Colonial policy.

and in

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